— *                                                                                                                         > 

1 

THE  LIBRARY 

OF 

THE  UNIVERSITY 

OF  CALIFORNIA 

DAVIS 


STATE  OF  CALIFORNIA 

DEPARTMENT  OF  PUBLIC  WORKS 

HI  VISION  OF  ENGINEERING  AND  IRRIGATION 


BULLETIN  No.  12  £~ 

SUMMARY  REPORT  /1/2L 


ON  THE 


Water  Resources  of  California 


AND  A 


Coordinated  Plan  for  their  Development 


A  REPORT  TO  THE  LEGISLATURE  OF  1927 
By  PAUL  BAILEY,  State  Engineer 


CALIFORNIA  STATE  PRINTING  OFFICE 

CHARLES  A.  WHITMORE.  State  Printer 

SACRAMENTO,  1927 


2—52404 


52404 


Site  for  Boulder  Canyon  Dam  on   Lower  Colorado  River 
Proposed   by   U.   S.    Bureau   of   Reclamation. 


TABLE  OF  CONTENTS. 

Paqh 

LETTER  OF  TRANSMITTAL 7 

LETTER  FROM  ENGINEERING  ADVISORY  COMMITTEE___  9 

PERSONNEL  OF  ADVISORY  COMMITTEES 11 

ORGANIZATION    13 

FOREWORD     16 

Chapter  889  of  the  Statutes  of  1921 18 

Chapter  477  of  the  Statutes  of  1925 19 

SUMMARY   REPORT    21 

Water  Resources  of  California 21 

Characteristics  of  a  Comprehensive  Plan 22 

Importance  of  Orderly  Development 24 

Necessity  of  Action 24 

Value  of  Coordinated  Development 26 

The  Coordinated  Plan 26 

Sacramento  Valley   27 

San  Joaquin  Valley 33 

Southern  California 42 

RECOMMENDATIONS   48 

MAP  OF  COORDINATED  PLAN 26 


LETTER  OF  TRANSMITTAL 


January  1,  1927. 
To  the  Members  of  the  Legislature, 
State  of  California, 
Session  of  1927. 

In  accordance  with  Chapter  477  of  the  1925  Statutes,  I 
have  the  honor  to  transmit  herewith  the  concluding  report 
on  six  years  of  investigation  of  the  water  resources  and  of 
the  present  and  future  requirements  for  water  in  Cali- 
fornia. 

As  the  result  of  this  extensive  study,  a  plan  has  been 
prepared  for  coordinating  the  development  and  use  of 
water  for  all  purposes  to  secure  the  greatest  public  advan- 
tage. This  plan  is  presented  as  the  most  feasible  engineer- 
ing solution  for  the  coordination  of  the  several  uses  of 
water  and  the  means  by  which  California  may  obtain  the 
water  necessary  for  future  development. 

The  plan  is  very  broad  in  its  scope.  It  deals  primarily 
with  the  larger  areas  deficient  in  local  supply  that  require 
the  importation  of  water  from  distant  sources  for  their 
full  development.  It  is  necessarily  based  upon  the  bene- 
ficial use  of  all  water.  It  involves  many  problems  of  exe- 
cution that  could  be  considered  at  this  time  only  to  the 
extent  necessary  to  produce  an  engineering  plan  with 
minimum  difficulty  in  other  respects.  No  attempt  has 
been  made  to  indicate  the  adjustments  that  would  have  to 
be  made  with  vested  rights  and  existing  uses  of  water. 
These  and  other  problems  are  of  such  complexity  and 
magnitude  that  their  solution  can  be  reached  only  through 
the  cooperative  effort  of  all  those  interested  in  the  develop- 
ment of  the  state.  The  facts  are  presented,  therefore,  in 
order  that  the  advantages  of  adopting  this  coordinated 
plan  may  be  weighed  with  the  probable  cost  and  other 
difficulties  and  appropriate  action  be  taken. 


In  conclusion  it  is  my  desire  to  call  to  your  attention  the 
great  value  received  by  the  state  from  the  services  of  the 
consultants  to  these  investigations.  Eminent  in  their  pro- 
fession and  mature  in  experience  and  judgment,  these  men 
have  given  much  time  from  their  busy  lives  at  nominal 
compensation  in  order  that  the  state  may  have  for  its  use 
the  best  the  engineering  profession  may  offer.  I  am  enclos- 
ing herewith  a  letter  in  which  this  Committee  has 
expressed  a  thought  pertinent  to  the  coordinated  plan  so 
well  taken  that  it  should  be  yours  in  its  original  statement. 

Respectfully  submitted. 


Director  of  Public  Works. 


LETTER  FROM  ENGINEERING  ADVISORY 

COMMITTEE. 


December  30, 1926. 
Director  of  Public  Works, 
Sacramento,  California. 

Dear  Sir  :  After  six  years  of  association  with  the  Divi- 
sion of  Engineering  and  Irrigation  in  the  discnsson  of  the 
problems  arising  in  the  investigation  of  the  water 
resources  of  California,  this  Committee  feels  that  it  should 
at  least  record  its  good  impression  of  the  efficient  manner 
in  which  the  entire  program  of  investigation  has  been 
organized  and  carried  out  by  the  Division.  Seldom  has 
such  an  intensive  study  been  made  over  a  long  period  of 
time  with  the  thoroughness,  efficiency,  and  complete  coop- 
eration of  all  interests  concerned,  as  has  been  accomplished 
in  the  work  described  in  the  accompanying  report  and  its 
appendices.  The  plan  which  has  been  evolved  is  one  of 
great  magnitude  and  complexity,  serving  as  it  does  irriga- 
tion, domestic  water  supply,  power  development,  naviga- 
tion, flood  control,  hydraulic  mining  and  the  prevention 
of  the  encroachment  of  salt  water  in  the  delta  of  the  Sacra- 
mento and  San  Joaquin  Rivers. 

It  is  the  opinion  of  the  Committee  that  the  results  of  the 
studies  as  set  forth  will  be  of  exceedingly  great  value 
to  the  future  progress  of  the  state.  However,  the  Com- 
mittee feels  that  it  would  be  lacking  in  candor  if  it  did  not 
point  out  at  this  time  that  the  value  of  such  a  plan  depends 
entirely  upon  its  ultimate  completion  and  operation  as  out- 
lined, no  matter  whether  constructed  by  private  interests, 
by  the  state  or  federal  governments,  or  by  any  combina- 
tion of  them. 

In  order  to  obtain  the  benefits  of  coordiuation  which  is 
the  essential  feature,  it  is  necessary  that  the  plan  be 


11) 


ST M MARY    RKl'ORT. 


adopted  as  a  whole  and  a  policy  be  devised  that  will  insure 
its  progressive  execution  in  harmony  with  existing,  pend- 
ing, and  future  local  projects,  and  that  when  completed, 
the  whole  be  operated  in  accordance  with  the  method  out- 
lined. With  such  a  policy  adopted  construction  may  pro- 
ceed by  units. 

Respectfully  submitted. 


^^oy 


Members  of  Engineering  Advisory  Committee. 


WATEK    RESOURCES    OF    CALIFORNIA.  11 


PERSONNEL  OF  ADVISORY  COMMITTEES. 


This  report  has  been  prepared  in  consultation  with  a 
committee  of  engineers  who  have  advised  in  the  prepara- 
tion of  the  "Coordinated  Plan."  Most  of  the  members 
have  served  through  the  entire  six  years  of  investigation. 
Also,  complete  cooperation  with  federal  and  state  offices 
has  obtained  through  the  entire  period.  In  this  regard, 
it  is  desired  to  mention,  especially,  Lieutenant-Colonel  U. 
S.  Grant,  III,  formerly  member  and  secretary  of  the  Cali- 
fornia Debris  Commission  and  District  Engineer,  Second 
District,  U.  S.  Federal  Engineers,  who  made  many  help- 
ful suggestions.  During  the  last  two  years,  Major  C.  S. 
Ridley,  member  and  secretary  of  the  California  Debris 
Commission,  successor  in  office  to  Lieutenant-Colonel 
Grant,  Mr.  F.  E.  Bonner,  District  Engineer,  U.  S.  Forest 
Service,  representing  the  Federal  Power  Commission  in 
California,  and  Mr.  L.  S.  Ready,  Chief  Engineer  of  the 
State  Railroad  Commission,  have  attended  the  committee 
meetings  and  entered  into  their  discussion.  The  entire 
committee  membership  is 

Louis  C.  Hill  B.  A.  Etcheverry 

J.  B.  Lippincott  F.  C.  Herrmann 

Wm.  Mulholland  Walter  L.  Huber 

A.  J.  Cleary  A.  Kempkey 
G.  A.  Elliott 


Cooperating  with  committee 

F.  E.  Bonner  C.  S.  Ridley 

L.  S.  Ready 


3—5^404 


]2  SUMMARY    REPORT. 

The  survey  of  the  water  resources  of  the  state,  pub- 
lished as  Bui.  No.  5,  "Flow  in  California  Streams,"  was 
made  in  consultation  with 

C.  E.  Grunsky  Charles  D.  Marx 

Louis  C.  Htll  H.  D.  McGlashan 


Estimates  of  the  water  required  for  the  full  development 
of  the  state's  resources,  published  as  Bui.  No.  6,  "Water 
Requirements  of  California  Lands,"  were  prepared  in 
consultation  with 

A.  N.  Burch  Samuel  Fortier 

B.  A.  Etcheverry  A.  L.  Sonderegger 


The  first  report  on  these  investigations  rendered  to  the 
1923  Legislature  and  published  as  Bui.  No.  4,  "Water 
Resources  of  California,"  was  prepared  with  the  advice 
of  a  citizens  committee  appointed  by  Governor  Stephens, 
as  follows: 

J.  C.  Forkner,  Chairman  H.  A.  Kluegel 

Peter  Cook  Robert  B.  Marshall 

Jonathan  S.  Dodge  H.  D.  McGlashan 

B.  A.  Etcheverry  O.  B.  Tout 

Harry  Hawgood  U.  S.  Webb 


WATER    RESOURCES   OP    CALIFORNIA.  13 


ORGANIZATION 


The  investigation  of  the  water  resources  of  California 
and  the  preparation  of  the  reports  thereon  have  been 
1)1  aimed,  directed  and  brought  to  completion  by 

Paul  Bailey, 

Director  of  Public  Works  and  Chief  of  the  Division  of 
Engineering  and  Irrigation. 

Acknowledgment  of  the  services  rendered  by  those  who 
assisted  in  the  preparation  of  previous  reports  submitted 
to  the  Legislatures  of  1923  and  1925  has  been  expressed 
in  those  reports. 

This,  the  summary  report  on  the  water  resources  of 
California  and  a  coordinated  plan  for  their  development, 
has  been  prepared  with  the  aid  of 

A.  D.  Edmonston,  Principal  Assistant. 

Chief  Assistants. 

T.  B.  Waddell  Percy  Jones 

Wm.  S.  Post  A.  M.  Wells 

A.  N.  Burch  Chester  Marliave 

Gerald  Jones  J.  J.  Haley,  Jr. 

Senior  Office  Engineers. 

C.  B.  Meyer  W.  A.  Perkins 

J.  H.  Peaslee  E.  W.  Case 

R.  L.  Wing  Gk  Stubblefield 


14 


SUMMARY    REPORT. 


Junior  Office  Engineers. 


T.  Neuman 
L.  C.  Jopson 

E.  W.  EOBERTS 
U.  B.  GlLEOY 

L.  N.  Clinton 
C.  W.  Roberts 
Laura  Munson 
Thomas  Claussen 

B.  A.  Reber 
A.  W.  Reber 
L.  E.  Anderson 
P.  T.  Alexander 

C.  F.  Marshall 

WM.  J.  O'CONNELL 

H.  M.  Sturges 
Harold  White 
F.  L.  Blair 


Oscar  Blumberg 
J.  R.  Jahn 
D.  S.  Hays 

A.  P.  BOSWORTH 

J.  R.  Meskimmons 
W.  A.  Dorcas 
H.  Gerharz 
J.  H.  Knapp 
M.  H.  Blote 
p.  h.  lovering 
Thomas  Lewis 
W.  R.  McLean 
P.  W.  Porter 
H.  N.  Sulliger 
V.  Glvan 
J.  H.  McCormick 


Delineators. 

Jos.  T.  Maguire 
E.  N.  Sawtelle 
C.  L.  Greene 


Field  Engineers  and  Topographers. 


H.  S.  Williams 
E.  D.  Stafford 
J.  F.  Taylor 

C.  C.  Vance 
Glenn  Lang 

D.  E.  Frazier 


F.  L.  Elam 
J.  H.  Gibson 
Millard  Dawson 
Ray  Vernon 
Ward  Eisan 


WATER    RESOURCES   OF    CALIFORNIA. 


15 


Engineering  Aids. 


F.  L.  Firebaugh 
E.  H.  Ford 
C.  W.  Frazier 
Geo.  Garlinghouse 
C.  R.  Hagberg 

C.  A.  Harper 
Leslie  Helgesson 

D.  J.  Stout 
J.  G.  Meyer 


E.  R.  Hinnant 
G.  R.  King 

F.  MONTELEAGRE 

Cleo  C.  Osborne 
D.  G.  Spellman 
Dewey  Turner 
G.  Zucco 
H.  Neuman 
R.  H.  Wight 


16  SUMMARY    REPORT. 


FOREWORD. 


This  report,  with  its  appendices,  completes  an  investi- 
gation of  the  Water  Resources  of  California  commenced  in 
1921.  It  comprises  a  survey  of  water  supplies  and  flood 
flows  throughout  the  state,  a  determination  of  their  char- 
acteristics, an  estimate  of  the  present  and  future  needs  for 
water,  and  the  formulation  of  a  comprehensive  and  coordi- 
nated plan  for  future  development  that  will  insure  ade- 
quate water  supplies  for  all  purposes.  Reports  have 
already  been  rendered  upon  the  work  of  the  first  four 
years.  The  material  and  data  comprising  this  report  are 
so  voluminous  that  only  a  summary  statement  is  contained 
herein.  Details  are  given  in  separate  volumes,  appendices 
to  this  report,  being  prepared  for  publication  as  bulletins 
of  the  Division  of  Engineering  and  Irrigation,  entitled, 
as  follows: 

Bui.  13 — "The  Development  of  the  Upper  Sacramento 
River. ' ' 

Bui.  14 — "The  Control  of  Floods  by  Reservoirs." 

Bui.  15 — "The  Coordinated  Plan  of  Water  Development 
in  the  Sacramento  Valley." 

Bui.  16 — "The  Coordinated  Plan  of  Water  Development 
in  the  San  Joaquin  Valley." 

Bui.  17 — "The  Coordinated  Plan  of  Water  Development 
in  Southern  California." 

Other  bulletins  pertaining  to  these  investigations  that 
have  been  published  prior  to  this  report  are : 

"Bui.  4 — "Water  Resources  of  California."  (A  report 
to  the  Legislature  of  1923  on  the  first  two 
years  of  investigation.) 


WATER   RESOURCES   OP   CALIFORNIA.  17 

Bul.     5 — "Flow  in  California  Streams." 
Bui.     6 — "Water  Requirements  of  California  Lands.'1 
Bul.     9 — "A  Supplemental  Report  on  the  Water  Re- 
sources  of   California."     (A  report  to  the 
Legislature  of  1925.) 
Bul.  11 — "Ground  Water  Resources  of  the  Southern  San 
Joaquin  Valley. ' ' 

The  first  appropriation  for  these  investigations  was 
made  by  the  Legislature  of  1921,  Chapter  889  of  the  1921 
Statutes,  in  the  amount  of  $200,000.  This  resulted  in  the 
publication  of  bulletins  Nos.  4,  5,  and  6.  These  contain  a 
complete  inventory  of  all  the  waters  within  the  state's 
boundaries,  an  estimate  of  the  future  needs  of  water  for  all 
purposes,  and  a  preliminary  comprehensive  plan  for  ulti- 
mate development  that  will  secure  the  greatest  public 
service  from  the  state's  limited  water  supply. 

No  provision  was  made  for  the  continuance  of  the  inves- 
tigations by  the  1923  Legislature  but  at  the  urgent  request 
of  the  farmers  of  the  southern  San  Joaquin  Valley,  the 
Chambers  of  Commerce  of  San  Francisco  and  Los  Angeles 
advanced  $90,000  for  the  study  of  a  first  unit  of  the  com- 
prehensive plan  that  would  relieve  the  stress  in  a  section  of 
the  state  most  in  need  of  an  imported  water  supply.  With 
this  money,  works  were  planned  that  would  transport  the 
surplus  waters  of  the  Sacramento  drainage  basin  into  the 
San  Joaquin  Valley  and  make  a  new  supply  available  for 
the  southern  half  of  the  valley.  An  account  of  this  work 
is  published  in  Bulletin  No.  9,  a  report  to  the  Legislature 
of  1925. 

Chapter  477  of  the  1925  statutes  made  $150,000  available 
to  the  Division  for  continuance  of  the  work.  With  this 
money,  the  accompanying  report  and  its  appendices  were 
prepared,  concluding  the  investigation  of  the  water 
resources  of  California. 


1£n  summary  report. 

CHAPTER  889. 

STATUTES  OF  1921. 

An  act  to  provide  for  the  investigation  by  the  State  of  California  of  the  possibilities 
of  the  storage,  control  and  diversion  of  water  for  public  use  and  public 
protection  in  the  State  of  California,  and  making  an  appropriation  for  said 
purpose. 

[Approved    June    3,    1921.] 
The  people  of  the  State  of  California  do  enact  as  follows: 

Section  1.  It  is  hereby  declared  that  the  people  of  the  State  of  California  have 
a  paramount  interest  in  the  use  of  all  the  waters  of  the  state  and  that  the  State 
of  California  shall  determine  what  waters  of  the  state,  surface  and  underground, 
can  be  converted  to  public  use,  or  controlled  for  public  protection. 

Sec.  2.  The  state  engineering  department  is  hereby  authorized  and  instructed  to 
make  the  investigation  in  this  act  provided  for  and  for  the  purposes  herein  specified. 

Sec.  3.  It  shall  be  the  duty  of  the  state  engineering  department  to  determine 
the  maximum  amount  of  water  which  can  be  delivered  to  the  maximum  area  of  land, 
the  maximum  control  of  flood  waters,  the  maximum  storage  of  waters,  the  effects  of 
deforestation  and  all  possible  and  practicable  uses  for  such  waters  in  the  State 
of  California. 

Sec.  4.  It  shall  be  the  duty  of  the  state  engineering  department  to  determine 
a  comprehensive  plan  for  the  accomplishment  of  the  maximum  conservation,  control, 
storage,  distribution  and  application  of  all  the  waters  of  the  state,  and  to  estimate  the 
cost  of  constructing  dams,  canals,  reservoirs  or  other  works  necessary  in  carrying 
out  this  plan,  and  to  report  the  result  of  such  investigations  with  recommendations 
not  later  than  the  legislative  session  of  1923. 

Sec.  5.  In  carrying  out  the  provisions  of  this  act  the  state  engineering  depart- 
ment is  hereby  authorized  to  examine  any  and  all  data,  estimates  and  proposals  in 
furtherance  of  the  above  purpose,  according  to  its  judgment  of  their  engineering 
worth,  and  to  cooperate  with  any  department,  bureau,  office,  service,  or  division 
of  the  United  States,  or  of  the  State  or  counties,  or  with  any  municipality,  irriga- 
tion, reclamation,  conservation,  drainage,  flood  control,  levee,  or  other  district  agency 
for  irrigation,  reclamation,  drainage,  or  flood  control  purposes,  or  for  the  development 
of  hydro-electric  power;  or  with  any  interested  association,  company  or  individual: 
providt  il.  further,  that  the  engineering  department  is  hereby  expressly  authorized  to 
accept,  receive  and  use  any  funds  or  moneys  contributed  to  it  by  any  person,  irriga- 
tion district,  reclamation  district,  water  and  conservation  district  or  any  political 
subdivision  of  the  State  of  California  for  the  purpose  of  cooperating  in  the  work 
aforesaid  and  carrying  out  the  purposes  of  this  act. 

Sec.  6.  With  the  approval  of  the  governor,  the  state  engineering  department  is 
hereby  authorized  to  employ  such  assistance  as  in  its  judgment  it  may  require  and 
lo  incur  such  expense  as  may  be  necessary  to  carry  out  the  purposes  of  this  act 
The  governor  is  further  authorized  to  appoint  a  consulting  board,  composed  of 
citizens  of  special  and  technical  qualifications,  to  serve  in  an  advisory  capacity,  and 
without  pay,  in  making  the  above  investigation. 

Sec.  7.  There  is  hereby  appropriated  out  of  any  money  in  the  state  treasury, 
not  otherwise  appropriated,  the  sum  of  two  hundred  thousand  dollars,  and  madp 
immediately  available  for  any  of  the  purposes  of  this  act. 

Sec.  8.  This  act  shall  not  in  any  way  be  construed  so  as  to  deprive  persons, 
corporations,  or  districts  of  vested  rights. 

Sec.  9.  Any  section  or  portion  of  a  section  of  any  act.  statute  or  law  of  (lip 
State  of  California  in  conflict  with  the  provisions  of  this  act  is  hereby  repealed. 


WATER   RESOURCES   OP    CALIFORNIA.  19 

CHAPTER  477. 

STATUTES  OF  1925. 

An  act  to  provide  for  the  investigation  by  the  State  of  California  of  the  possibilities 
of  coordinating  the  development  of  the  water  resources  of  the  state  for  public 
protection  and  to  the  end  that  they  may  be  put  to  the  greatest  beneficial  use, 
and  making  an  appropriation  for  said  purpose. 

[I  object  to  the  item  of  two  hundred  fifty  thousand  dollars  in  section  9  and  reduce 
the  amount  to  one  hundred  fifty  thousand  dollars.  With  this  reduction  I  approve  the 
bill.     Dated:  May  23,   1925.     Friend  Wm.   Richardson,  Governor.'] 

The  people  of  the  State  of  California  do  enact  as  follows: 

Section  1.  It  is  hereby  declared  that  the  protection  of  the  public  interest  in 
the  development  of  the  water  resources  of  the  State  of  California  is  of  vital 
concern  to  the  people  of  the  State  of  California  and  .that  the  State  of  California 
shall  determine  in  what  way  the  waters  of  the  state,  both  surface  and  underground, 
should  be  developed  for  the  greatest  public  benefit,  or  controlled  for  public  protection. 

Sec.  2.  The  division  of  engineering  and  irrigation  of  the  department  of  public 
works  is  hereby  authorized  and  instructed  to  make  the  investigation  in  this  act 
provided  for  and  for  the  purposes  herein  specified. 

Sec.  3.  It  shall  be  the  duty  of  the  division  of  engineering  and  irrigation  of  the 
department  of  public  works  to  investigate  the  amounts  and  location  of  all  the 
waters  of  the  state,  both  surface  and  underground,  and  to  determine  the  amounts 
available  for  use ;  to  investigate  all  possible  uses  of  water ;  and  to  determine  the 
future  growth  of  these  demands  and  the  works  necessary  for  the  accomplishment 
of  the  greatest  use  of  the  state's  waters  for  all  purposes ;  also  to  investigate  the 
occurrence  of  floods  and  the  works  necessary  for  their  control. 

Sec.  4.  It  shall  be  the  duty  of  the  division  of  engineering  and  irrigation  of 
the  department  of  public  works  to  ascertain  the  bounds  of  the  agricultural  lands 
of  the  state  and  the  amounts  of  water  required  to  bring  them  to  maximum  pro- 
ductivity, their  economic  source  of  irrigation  supply,  and  the  value  of  delivery  of 
water  to  the  land ;  to  ascertain  the  amounts  of  water  required  for  municipal  and 
industrial  purposes  and  for  the  generation  of  hydro-electric  energy  and  for  all  other 
practicable  uses  and  the  economic  source  of  supplies  for  all  these  purposes. 

Sec.  5.  It  shall  be  the  duty  of  the  division  of  engineering  and  irrigation  of  the 
department  of  public  works  to  study  the  coordination  of  all  possible  uses  of  water 
to  the  end  that  a  full  supply  may  be  obtained  as  nearly  as  possible  for  all  purposes 
with  the  greatest  degree  of  public  economy  and  to  determine  a  comprehensive  plan 
for  the  accomplishment  of  these  purposes  with  the  maximum  conservation,  control, 
storage,  distribution  and  application  of  all  the  waters  of  the  state  and  to  estimate 
the  cost  of  the  necessary  works  and  structures  for  carrying  out  this  plan  and  to 
make  all  such  studies,  do  all  work,  make  all  investigations,  compile  all  data  required 
to  determine  the  manner  in  which  the  water  resources  of  the  state  should  be 
developed  for  their  greatest  use  and  public  benefit. 

Sec.  6.  It  shall  be  the  duty  of  the  division  of  engineering  and  irrigation  of  the 
department  of  public  works,  to  prepare  a  printed  report  setting  forth  the  results 
of  these  investigations  with  recommendations  for  a  public  policy  for  the  development 
and  conservation  of  the  water  resources  of  the  state,  not  later  than  the  first  day 
of  January,   1927. 

Sec.  7.  The  division  of  engineering  and  irrigation  of  the  department  of  public 
works  in  carrying  out  the  provisions  of  this  act,  is  hereby  authorized  to  examine 
any  and  all  data,  estimates  and  proposals  in  furtherance  of  the  above  purpose, 
according  to  its  judgment  of  their  engineering  worth,  and  to  consult  with  and  accept 
the  work  of  any  department,  bureau,  office,  service,  or  division  of  the  United  States, 
or  of  the  state  or  counties,  or  with  any  municipality,  irrigation,  reclamation,  con- 
servation, drainage,  flood  control,  levee,  or  other  district  agency  for  irrigation, 
reclamation,  drainage,  or  flood  control  purposes,  or  for  the  development  of  hydro- 
electric power ;  or  with  any  interested  association,  company  or  individual ;  provided, 
further,  that  the  division  of  engineering  and  irrigation  of  the  department  of  public 
works  is  hereby  expressly  authorized  to  accept,  receive  and  use  any  funds  or  moneys 
contributed  to  it  by  any  irrigation  district,  reclamation  district,  water  and  conserva- 
tion district  or  any  political  subdivision  of  the  State  of  Californa  for  the  purpose 
of  cooperating  in  the  work  aforesaid  and  carrying  out  the  purposes  of  this  act. 

4—52404 


20  SUMMARY    REPORT. 

Sec.  S.  The  division  of  engineering  and  irrigation  of  the  department  of  public 
works  is  hereby  authorized,  with  the  approval  of  the  governor,  to  employ  such 
assistance  as  in  its  judgment  it  may  require  and  to  incur  such  expense  as  may 
be  necessary  to  carry  out  the  purposes  of  this  act.  The  governor  is  further  author- 
ized to  appoint  a  consulting  board,  composed  of  representative  citizens,  to  serve  in 
an  advisory  capacity  in  preparing  the  above  report. 

Sec.  9.  There  is  hereby  appropriated  out  of  any  money  in  the  state  treasury, 
not  otherwise  appropriated,  the  sum  of  two  hundred  fifty  thousand  dollars,  and  made 
immediately  available  for  any  of  the  purposes  of  this  act. 

Sec.  10.  This  act  shall  not  in  any  way  be  construed  so  as  to  deprive  persons, 
corporations,  or  districts  of  vested  rights. 

Sec.  11.  Any  section  or  portion  of  a  section  of  any  act,  statute,  or  law  of  the 
State  of  California  in  conflict  with  the  provisions  of  this  act  is  hereby  repealed. 


WATER   RESOURCES   OP    CALIFORNIA.  21 


SUMMARY  REPORT. 


* 


WATER  RESOURCES  OF  CALIFORNIA. 

California,  extending  for  eight  hundred  miles  along 
the  Pacific  shore  of  the  United  States,  enjoys  a  moderate 
and  pleasing  climate  favorable  for  human  activity.  The 
forests  and  minerals  of  its  mountains,  the  fertile  soils 
of  its  valleys,  and  the  commercial  potentialities  of  its 
seaports  destine  this  state  to  advance  in  wealth  and  popu- 
lation until  the  exhaustion  of  some  of  life's  necessities 
imposes  a  limit  upon  further  expansion.  With  spacious 
areas  of  flat  lands  at  low  elevations,  there  is  much  smooth 
and  accessible  ground  suitable  for  habitation.  Natural 
resources  for  supporting  man's  activities,  excepting 
water,  are  near  at  hand  in  abundance. 

The  water  supply  of  this  great  state  is  derived  from 
its  annual  drenching  by  rain  and  snow.  Falling  with 
greatest  intensity  upon  the  mountain  areas,  these  upland 
regions  constitute  expansive  collectors  of  precipitation 
which  concentrates  in  stream-channels  and  flows  to  the 
ocean,  passing  by  on  the  way  the  lower  lying  lands  favor- 
able for  human  occupation.  Once  a  year  the  short  win- 
ters wet  the  mountains  and  lowlands  alike  so  that  the  bulk 
of  the  flow  in  California's  streams  occurs  at  the  time  of 
least  demand  for  water.  Three-fourths  of  all  the  state's 
waters  reach  the  ocean  within  forty-five  days  after  the 
time  of  their  precipitation  as  rain  or  snow  upon  the 
mountain  areas.  The  long,  warm,  almost  rainless  sum- 
mers require  water  in  large  quantities  for  all  human  en- 

*A  full  description  of  the  geography,  land  and  water  resources  of  California  and 
matters  pertaining  thereto,  together  with  a  preliminary  comprehensive  plan  for  their 
development,  is  contained  in  previously  published  reports  of  the  Division  of  Engineer- 
ing and  Irrigation  as  follows : 

Bui.  No.  4,  Water  Resources  of  California. 

Bui.  No.  5,  Flow  in  California  Streams. 

Bui.  No.  6,  Irrigation  Requirements  of  California  Lands. 

Bui.  No.  9,  Supplemental  Report  on  Water  Resources  of  California. 


22  SUMMARY    REPORT. 

deavors,  but  the  summer  flow  in  the  streams,  most  valued 
of  all,  is  only  the  drain  water  in  wake  of  the  great  volume 
of  winter  and  spring  run-off.  Those  streams  to  which 
even  the  highest  mountain  areas  are  tributary,  are  well 
sustained  by  melting  snow  only  through  the  first  half  of 
the  summer  months. 

Practically  all  the  summer  flow  of  California's  streams 
that  are  accessible,  is  now  in  use.  Further  advancement 
is  attendant  upon  the  construction  of  reservoirs  that  will 
make  available  for  use  at  the  needed  time,  the  great 
volume  of  winter  and  spring  run-off  of  normal  years. 
Including  this,  ample  water  originates  within  the  state's 
boundaries  for  all  future  needs  but  it  is  very  unequally 
distributed  geographically.  Three-fourths  of  all  this 
water  lies  within  the  northerly  third  of  the  state's  area, 
while  three-fourths  of  the  need  for  water  lies  in  the 
southerly  two-thirds  of  the  state's  area.  There  is  some 
water  available  to  California  in  addition  to  that  originat- 
ing within  the  state's  boundaries  in  the  Colorado  and 
Klamath  River  systems.  Of  these,  however,  the  Colorado 
River  is  the  only  one  geographically  situated  to  alleviate 
the  very  unequal  distribution  of  the  waters.  This  sur- 
vey of  the  available  waters  and  of  the  future  needs  for 
water  shows  that  full  development  of  the  latent  resources 
of  California  can  be  attained  only  through  the  storage 
and  distribution  of  water  in  accordance  with  some  com- 
prehensive plan,  embracing  both  state  and  interstate 
streams,  that  will  overcome  the  very  unequal  geographic 
distribution  of  the  state's  waters  and  that  will  insure  ade- 
quate supplies  for  all  localities. 

CHARACTERISTICS  OF  A  COMPREHENSIVE  PLAN. 

The  agricultural  lands,  by  reason  of  their  flatter  topog- 
raphy, their  temperate  climate,  and  their  accessibility, 
are  most  suitable  of  all  the  state's  lands  for  habitation. 
Except  for  areas  about  the  state's  seaports,  the  urban 
communities  of  the  future  must  largely  spread  over  lands 


WATER   RESOURCES   OP    CALIFORNIA.  23 

now  classed  as  agricultural.  Since  cities  of  fairly  mature 
growth  use  water  about  equal  in  amount  to  that  required 
for  irrigating  crops  on  the  same  area,  a  plan  that  will 
provide  an  adequate  allotment  of  water  for  all  the  agri- 
cultural lands,  together  with  additional  amounts  for 
urban  expansion  about  the  state's  seaports,  will  meet  the 
future  demands  for  water  in  the  maximum  development 
of  the  state's  resources. 

At  the  present  time,  ninety-six  per  cent  of  the  water 
consumed  in  California  is  utilized  in  irrigating  farm 
lands.  This  ratio  will  continue  to  be  large  for  many  gen- 
erations because  the  growth  of  municipal  areas  relative 
to  areas  farmed,  must  necessarily  be  slow.  The  prin- 
cipal features  of  a  comprehensive  plan,  therefore,  must 
revolve  about  the  greatly  preponderant  need  of  water  for 
agriculture.  However,  the  importance  of  municipal,  in- 
dustrial, navigation,  hydro-electric  and  mining  uses  in  the 
future  growth  of  the  state  requires  liberal  provision  for 
their  needs. 

Fortunately  the  agricultural,  municipal,  industrial  and 
navigation  uses  will  expand  upon  areas  of  low  elevation, 
for  three-fifths  of  the  agricultural  lands  are  less  than  five 
hundred  feet  above  sea  level.  The  mining  and  hydro-elec- 
tric uses  will  expand  in  the  mountainous  regions  that  rise 
above  the  agricultural  lands.  Since  these  mountain  uses 
of  water  return  to  the  stream  channels  practically  the  full 
c*i  mount  diverted,  reservoirs  to  re-regulate  the  flow  situated 
at  levels  intermediate  between  the  agricultural  and  the 
mountain  areas,  will  permit  the  unrestricted  development 
of  hydro-electric  power  and  mining  in  harmony  with  a 
complete  re-use  of  the  same  water  on  the  plains  below. 
Large  reservoirs  at  these  intermediate  elevations,  there- 
fore, are  important  features  of  a  comprehensive  plan  to 
secure  the  greatest  use  from  the  state's  waters. 


24  SUMMARY    REPORT. 

IMPORTANCE  OF  ORDERLY  DEVELOPMENT. 

It  may  be  observed  in  traveling  about  the  state  that 
cities  and  towns  do  not  flourish  where  water  is  deficient. 
The  most  prosperous  centers  of  population  are  those  enjoy- 
ing ample  water  for  both  the  municipal  and  adjacent 
country  areas.  In  a  state  whose  potential  wealth,  whether 
derived  from  industry  in  the  cities  or  the  cultivation  of 
country  lands,  can  only  be  realized  in  its  full  munificence 
through  the  artificial  development  of  water  supplies,  there 
can  be  no  greater  subject  for  consideration  than  the  crea- 
tion of  a  state  water  policy  designed  to  secure  an  orderly 
development  of  its  water  resources  for  the  greatest  public 
benefit. 

NECESSITY  OF  ACTION. 

►Since  the  easily  developed  waters  are  now  practically 
all  in  use,  the  future  must  spend  greater  sums  for  water 
than  has  been  necessary  in  the  past.  Following  the  present 
incoordinate  procedure,  the  costs  of  securing  additional 
water  in  localities  of  short  supply  will  be  large  and  will 
become  prohibitive  as  local  supplies  are  exhausted.  The 
expanding  population  of  these  communities  will  then  seek 
more  favored  localities,  either  within  or  without  the  state's 
borders.  As  the  unfavorable  conditions  spread  to  greater 
areas  the  loss  to  the  state  will  increase  rapidly,  for  only 
the  northerly  half  of  the  state  has  ample  water  for  future 
local  use. 

The  approach  to  exhaustion  of  local  supplies  in  many 
parts  of  California  presents  even  more  serious  aspects 
than  the  loss  of  anticipated  wealth  through  curtailment  of 
expansion.  Large  areas  deriving  their  supply  from  under- 
ground sources  are  facing  a  dropping  ground-water  plane. 
These  areas  are  extending  as  their  communities  expand. 
Without  additional  supplies,  well  levels  in  these  regions 
will  continue  to  drop  until  either  the  underground  basins 
are  exhausted  or  the  cost  of  pumping  water  to  the  ground 


WATER   RESOURCES   OF    CALIFORNIA.  25 

surface  exceeds  its  value.  For  the  most  part,  these  areas 
of  dropping  ground-water  plane  are  only  partially 
developed  and  are  without  additional  local  supplies.  Their 
natural  expansion,  therefore,  will  unavoidably  destroy  the 
values  of  their  established  properties  and  convert  them 
into  decadent  communities. 

A  series  of  wet  years  might  afford  temporary  relief  to 
the  regions  of  dropping  ground-water  plane  as  well  as  to 
other  areas  of  acute  water  problems ;  however,  unless  plans 
for  permanent  relief  are  perfected  during  the  surcease, 
the  disaster  will  be  the  greater  for  the  next  succeeding  dry 
years  will  be  entered  upon  with  increased  demands  for 
water  but  no  greater  supply.  The  prosperity  of  any  part 
of  this  great  state  should  not  rest  even  temporarily  upon 
the  chance  occurrence  of  greater-than-normal  years. 
Works  to  relieve  these  communities  are  extensive  in  their 
character  and  involve  many  difficulties.  They  cannot  be 
executed  without  long  preparation.  To  defer  action, 
therefore,  is  to  invite  future  disaster. 

Much  has  recently  been  said  about  converting  agricul- 
ture from  a  " gamble"  into  a  "business"  so  that  farming 
may  be  as  other  industries.  This  would  be  done  through 
diversification  of  crops  and  control  of  production.  The 
diversification  of  crops  and  control  of  production  can  only 
be  attained  in  localities  where  irrigation  water  is  available 
as  needed  in  all  seasons  of  the  year.  Variability  in  the 
water  supply  forces  the  selection  of  crops  best  adapted  to 
expected  shortages.  Uncertainty  in  supply  forces  the 
farmer  to  gamble  on  the  occurrence  of  stream  flow  and 
prohibits  the  control  of  production. 

Not  over  two-thirds  of  the  area  now  under  irrigation  in 
California  can  obtain  water  as  needed  with  reasonable 
certainty.  Large  areas  of  the  state's  irrigated  lands  have 
been  planted  to  crops  most  suited  to  the  irregular  char- 
acter of  their  water  supplies  and  suffer  the  losses  con- 
tingent upon  variable  soil  moisture.  The  perfection  of 
controlled  supplies  is  under  way  in  many  communities 


2fi  SUMMARY    REPORT. 

that  can  afford  the  cost.  However  inadequate  local  sources, 
the  heavy  costs  of  regulating  last  increments  of  stream 
flow,  and  conflicting  claims  to  water  rights,  make  progress 
slow.  Progress  would  be  facilitated  by  the  adoption  of  a 
comprehensive  plan  that  would  ultimately  furnish  with 
reasonable  certainty,  adequate  supplies  to  all  localities 
throughout  the  growing  season. 

VALUE  OF  COORDINATED  DEVELOPMENT. 

The  cost  of  carrying  out  a  comprehensive  plan  that 
would  permit  the  agricultural  industry  to  operate  as  a 
business  and  that  would  remove  the  limitations  of  develop- 
ment on  half  of  the  area  of  this  state,  would  be  large ;  yet, 
there  is  no  alternative  if  these  objectives  are  to  be  attained. 
The  costs  may  be  minimized,  however,  by  coordination  of 
the  development  of  water  for  all  purposes.  Through  this 
means  the  cost  of  conflict  may  be  removed,  the  cost  of 
duplicate  works  may  be  eliminated,  the  cost  of  expensive 
reconstruction  may  be  avoided  as  works  are  enlarged,  and 
the  greatest  re-use  of  water  may  be  secured.  This  report 
is  the  first  to  present  the  advantages  of  coordinated  effort. 
It  is  believed  that  through  this  means  only  can  values  be 
created  commensurate  with  the  large  costs  of  a  compre- 
hensive plan,  and  that  possibly  through  this  means  the 
state  may  enjoy  advantages  not  heretofore  believed 
possible. 

THE  COORDINATED  PLAN. 

As  directed  by  your  honorable  body  in  Chapter  477  of 
the  1925  Statutes,  the  Division  of  Engineering  and  Irri- 
gation, State  Department  of  Public  Works,  has  prepared 
a  coordinated  plan  for  the  development  of  the  waters  in 
the  major  geographic  divisions  of  the  state.  This  plan 
provides  for  the  storage  of  flood  waters  for  conservation 
purposes,  the  transportation  of  surplus  waters  of  the 
Sacramento  drainage  basin  to  the  deficient  areas  in  the 


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WATER   RESOURCES   OP    CALIFORNIA.  27 

San  Joaquin  Valley,  an  adequate  summer  flow  in  the 
Sacramento  River  for  navigation  and  salt  water  control, 
the  resumption  of  hydraulic  mining  in  the  Sierra  Nevada 
Mountains,  the  control  of  floods  by  reservoirs,  the  expan- 
sion of  irrigation  along  the  lower  Colorado  Elver  in  south- 
eastern California,  and  the  diversion  of  water-  from  that 
river  to  the  Pacific  slope  for  municipal  purposes.  All 
sections  could  not  be  considered  because  of  the  limitations 
of  time  and  money.  However,  any  policy  that  may  result 
from  this  report  should  be  extended  to  all  parts  of  the 
state. 

A  general  description  of  the  plan  follows  in  this  report. 
The  volume  of  pertinent  engineering  data  and  detail 
dimensions  is  contained  in  separate  appendices,*  one  for 
each  geographic  section  of  the  state. 

THE  SACRAMENTO  VALLEY. 

The  Sacramento  Valley,  170  miles  long  and  30  miles 
wide,  contains  2,900,000  acres  of  agricultural  land  on  the 
valley  floor  and  2,300,000  acres  in  its  marginal  plains  and 
foothills.  This  valley  has  been  growing  rapidly.  About 
1,000,000  acres  are  now  under  irrigation  systems,  mostly 
on  the  valley  floor.  The  expansion  of  irrigation  has  ab- 
sorbed practically  the  entire  summer  flow  of  the  river  dur- 
ing the  last  several  years  of  subnormal  run-off,  so  much 
so,  that  for  a  time  each  season,  navigation  was  seriously 
curtailed  upstream  from  the  city  of  Sacramento.  The  War 
Department  issued  warnings  to  the  valley  irrigators  that 
sufficient  water  for  navigation  must  be  left  in  the  river.  In 
response,  the  irrigators  organized  a  state  supervisorship 
over  their  diversions  to  reduce  them  to  a  minimum  quan- 
tity.   A  critical  situation  is  approaching  wherein  the  nec- 

*A  detailed  description  of  the  coordinated  plan  with  engineering  data  is  in 
preparation  for  publication  in  bulletins  of  the  Division  of  Engineering  and  Irriga- 
tion as  follows :  Bui.  No.  15,  "The  Coordinated  Plan  of  Water  Development  in  the 
Sacramento  Valley."  Bui.  No.  16,  "The  Coordinated  Plan  of  Water  Development  in 
the  San  Joaquin  Valley."  Bui.  No.  17,  "The  Coordinated  Plan  of  Water  Develop- 
ment in  Southern  California." 


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WATER   RESOURCES   OP    CALIFORNIA.  27 

San  Joaquin  Valley,  an  adequate  summer  flow  in  the 
Sacramento  River  for  navigation  and  salt  water  control, 
the  resumption  of  hydraulic  mining  in  the  Sierra  Nevada 
Mountains,  the  control  of  floods  by  reservoirs,  the  expan- 
sion of  irrigation  along  the  lower  Colorado  River  in  south- 
eastern California,  and  the  diversion  of  water-  from  that 
river  to  the  Pacific  slope  for  municipal  purposes.  All 
sections  could  not  be  considered  because  of  the  limitations 
of  time  and  money.  However,  any  policy  that  may  result 
from  this  report  should  be  extended  to  all  parts  of  the 
state. 

A  general  description  of  the  plan  follows  in  this  report. 
The  volume  of  pertinent  engineering  data  and  detail 
dimensions  is  contained  in  separate  appendices,*  one  for 
each  geographic  section  of  the  state. 

THE  SACRAMENTO  VALLEY. 

The  Sacramento  Valley,  170  miles  long  and  30  miles 
wide,  contains  2,900,000  acres  of  agricultural  land  on  the 
valley  floor  and  2,300,000  acres  in  its  marginal  plains  and 
foothills.  This  valley  has  been  growing  rapidly.  About 
"1,000,000  acres  are  now  under  irrigation  systems,  mostly 
on  the  valley  floor.  The  expansion  of  irrigation  has  ab- 
sorbed practically  the  entire  summer  flow  of  the  river  dur- 
ing the  last  several  years  of  subnormal  run-off,  so  much 
so,  that  for  a  time  each  season,  navigation  was  seriously 
curtailed  upstream  from  the  city  of  Sacramento.  The  War 
Department  issued  warnings  to  the  valley  irrigators  that 
sufficient  water  for  navigation  must  be  left  in  the  river.  In 
response,  the  irrigators  organized  a  state  supervisorship 
over  their  diversions  to  reduce  them  to  a  minimum  quan- 
tity.   A  critical  situation  is  approaching  wherein  the  nec- 

*A  detailed  description  of  the  coordinated  plan  with  engineering  data  is  in 
preparation  for  publication  in  bulletins  of  the  Division  of  Engineering  and  Irriga- 
tion as  follows :  Bui.  No.  15,  "The  Coordinated  Plan  of  Water  Development  in  the 
Sacramento  Valley."  Bui.  No.  16,  "The  Coordinated  Plan  of  Water  Development  in 
the  San  Joaquin  Valley."  Bui.  No.  17,  "The  Coordinated  Plan  of  Water  Develop- 
ment in  Southern  California." 


28  SUMMARY    REPORT. 

essary  appropriation  of  water  for  irrigation  is  conflict- 
ing- with  the  national  jurisdiction  over  navigation. 

Further  difficulties  arise  near  the  month  of  the  river. 
The  diminished  low  water  flow  of  the  Sacramento  River 
has  been  insufficient  to  hold  back  the  salt  water  of  Suisun 
Bay.  For  a  period  each  season,  the  sweep  of  the  tide 
through  the  channels  of  the  delta  region  at  the  mouth  of 
t  lie  river,  carries  in  salt  water  from  Suisun  Bav  that 
mixes  with  the  fresh  water  of  the  river.  As  the  summer 
flow  in  the  river  decreases,  the  menace  of  salty  water  be- 
comes more  serious  in  the  channels  from  which  the  delta 
lauds  have  habitually  obtained  their  supply.  These  threat- 
ened lands  are  some  of  the  most  fertile  in  the  state. 

Although  the  unused  summer  flow  of  the  Sacramento 
River  is  rapidly  diminishing,  the  winter  and  spring  flow 
is  large.  In  their  natural  state,  these  waters  overflowed 
large  areas  along  the  river.  In  1911  the  state  legislature 
and  in  1917  the  national  congress  adopted  a  general  plan 
of  reclamation  by  which  channels  and  by-passes  lead  this 
flood  water  in  Suisun  Bay  without  inundating  the  valley 
floor.  These  channels  are  wide  due  to  the  great  flood  flows 
of  the  Sacramento  River.  They  take  up  much  room  and 
will  constitute  increasingly  awkward  barriers  to  traffic 
as  the  valley  becomes  more  thickly  populated.  Although 
some  of  these  channels  and  by-passes  are  already  con- 
structed, nevertheless,  reduction  in  the  size  of  floods  would 
afford  greater  margins  of  safety  and,  on  those  channels 
not  vet  constructed,  the  widths  could  be  materially 
decreased.  Floods  can  be  reduced  in  size  only  through 
their  control  by  reservoirs.  Therefore,  at  this  time  when 
the  construction  of  reservoirs  is  necessary  in  order  that 
agriculture  may  continue  to  expand  in  the  Sacramento 
Valley,  it  is  appropriate  that  the  control  of  floods  by  reser- 
voirs should  receive  consideration. 

Attention  should  also  be  given  in  a  program  of  reservoir 
construction  to  the  rejuvenation  of  hydraulic  mining.  On 
January  7,  1884,  a  decision  of  a  Federal  Court  prohibited 
further  hvdraulic  mining  in  California  because  the  debris 


WATER   RESOl  ROES    OP    CALIFORNIA.  29 

dumped  in  the  stream  channels  was  washing  down  on  to 
the  farm  lands  of  the  Sacramento  Valley  floor.  Although 
later  congressional  enactments  provided  for  the  resump- 
tion of  hydraulic  mining  under  restrictions,  the  1000  mil- 
lion cubic  yards  of  gold-bearing  gravels  in  the  Sierra  foot- 
hills remain  unmined.  It  would  mean  much  to  the  state 
to  revive  this  industry  and  much  to  the  nation  to  increase 
its  gold  production.  In  order  that  this  industry  may  be 
revived,  it  is  necessary  to  place  barriers  in  the  stream 
channels  to  restrain  the  debris  from  reaching  the  valley 
floor.  Reservoirs  constructed  for  conservation  purposes 
may  be  so  used.  If  these  are  located  on  the  lower  reaches 
of  the  streams,  several  years  will  pass  before  the  debris 
will  work  its  way  down  the  stream  channels  to  lodge  in  or 
near  the  upper  edge  of  the  reservoirs.  Much  of  it  would 
pile  up  at  their  margins  or  fill  the  channels  for  a  distance 
upstream.  Other  material  would  lodge  in  the  channels 
before  reaching  them.  Such  material  would  not  impair 
their  capacity.  Reservoirs  employed  as  debris  barriers, 
therefore,  would  maintain  their  full  conservation  values 
for  many  years  after  mining  started  and  would  never  have 
their  capacity  impaired  to  the  full  extent  of  the  volume  of 
mining  debris  dumped  into  the  stream  channels  above 
them. 

The  coordinated  plan  for  the  Sacramento  Valley  com- 
prehends the  solution  of  all  these  public  problems,  water 
for  navigation  and  salt  water  control,  the  reduction  of 
flood  flows,  and  the  restraint  of  mining  debris,  while  at  the 
same  time  providing  for  the  increasing  demands  for  irri- 
gation water  through  the  construction  of  a  large  reservoir 
on  the  Sacramento  River,  one  on  each  of  its  main  tribu- 
taries, and  the  diversion  of  the  upper  portion  of  the  Trin- 
ity River  into  the  Sacramento  drainage  basin.  These  reser- 
voirs arc  all  located  in  the  foothills  near  the  edge  of  the 
valley  floor.  Tn  this  position,  with  almost  the  entire  water- 
shed tributary  to  them,  they  are  admirably  situated  for 
the  control  of  floods  and  the  storage  of  mining  debris  as 
well  as  for  conserving  flood  water  for  irrigation.    Also,  in 


30  SUMMARY    REPORT. 

this  strategic  position,  they  separate  the  mountain  and 
valley  use  of  water,  permitting  each  to  proceed  as  best 
suits  its  needs  without  conflict,  and  so  secure  the  maximum 
public  service  from  the  state's  limited  water  supply. 
Lastly,  they  occupy  the  sites  of  least  cost  for  the  many 
advantages  obtained. 

The  units  of  a  coordinated  construction  program  com- 
prise a  high  dam  near  Kennett  on  the  Upper  Sacramento 
River,  one  on  the  Feather  River  near  Oroville,  one  on  the 
Yuba  River  near  Smartsville,  one  on  the  Bear  River  near 
the  state  highway  crossing,  and  one  on  the  American  River 
near  Folsom.  The  Trinity  River  diversion  would  intro- 
duce a  new  supply  from  the  Klamath  River  system  into 
the  Sacramento  Valley.  These  would  each  be  integral 
parts  of  the  comprehensive  plan  for  ultimate  development, 
^ould  be  constructed  progressively,  and  would  provide 
sufficient  water  to  meet  all  the  increase  in  demands  of  navi- 
gation, of  salt  water  control  and  of  conservation  during 
the  next  half  century  if  operated  in  accordance  with  the 
plan  herein  presented.  The  reservoir  capacities  of  these 
units  are  adequate  to  reduce  floods  and,  on  those  streams 
on  which  placer  gravels  exist,  to  restrain  mining  debris 
for  manv  vears  without  interference  with  their  conserva- 
tion  values.  Also  a  large  amount  of  electric  power  could 
be  generated  at  the  dams. 

In  preparing  this  coordinated  plan,  special  attention  has 
been  placed  upon  devising  a  safe  procedure  for  the  use 
of  reservoirs  for  flood  control  without  sacrifice  of  their 
conservation  values.  Heretofore,  it  has  been  considered 
impossible  to  use  the  same  space  for  the  two  purposes, 
because  for  flood  control  it  should  be  held  empty  during  the 
season  of  large  run-off  in  readiness  to  absorb  flood  flows, 
while  for  conservation  it  should  be  allowed  to  fill  while  the 
water  is  available.  After  elaborate  research  to  determine 
the  characteristics  of  floods,  a  method  has  been  evolved 
whereby  the  space  reserved  for  flood  control  can  be  safely 
released  in  time  to  fill  for  conservation  as  the  season 
progresses. 


WATER   RESOURCES   OF    CALIFOKM  \.  :?1 

The  application  of  these  principles  to  the  operation  of 
the  series  of  proposed  reservoirs  in  the  Sacramento  Valley 
would  effect  a  marked  reduction  in  the  flood  flows  in  all  the 
large  tributaries  as  well  as  in  the  main  channel.  On  the 
Upper  Sacramento,  the  flood  flow  would  be  cut  to  half  the 
maximum,  a  reduction  that  would  make  it  feasible  to 
reclaim  Butte  Basin,  if  desired.  On  the  Feather,  Yuba 
and  Bear  rivers,  floods  would  be  controlled  to  two-thirds 
their  maximum  volume.  This  reduction  would  permit 
reclamation  along  the  Feather  River  to  be  completed  with- 
out much  additional  levee  construction  and  with  the  use 
of  the  present  levee  alignments  except  for  a  mile  or  two 
in  a  particularly  restricted  section  of  channel  below  Marys- 
ville.  On  the  American  River,  the  Folsom  reservoir  oper- 
ated under  this  plan,  would  limit  floods  on  this  tributary 
to  a  flow  that  could  be  confined  between  levees  on  the  banks 
of  the  present  river  channel.  The  cities  of  Sacramento  and 
of  North  Sacramento  could  then  expand  to  the  river 's  edge 
and  so  eliminate  the  awkwardness  of  the  present  crossing 
that  spans  a  wide  area  of  overflow  land  between  them. 

Since  power  is  the  most  readily  marketable  product  of 
the  reservoir  system,  the  plan  proposes  to  operate  these 
reservoirs  for  the  first  period  of  years  in  a  manner  that 
will  produce  the  greatest  revenue  from  power.  The  block 
of  power  generated  at  these  reservoirs  should  produce  a 
substantial  income  if  successfully  marketed.  The  output 
is  large.  Including  the  Trinity  River  diversion,  it  is  about 
equal  to  the  present  total  production  of  power  in  north- 
ern California.  To  sell  this  large  block  of  power  will 
require  skill  in  laying  out  the  construction  program  and 
the  complete  cooperation  of  every  marketing  agency. 
Without  this  cooperation,  a  program  as  herein  described 
would  be  wholly  impracticable.  With  this  cooperation, 
the  sale  of  power  could  do  much  toward  carrying  the 
construction  costs. 

In  proposing  to  operate  this  system  of  reservoirs  for 
the  first  period  of  years  to  obtain  the  greater  power  rev- 


32  KUMMAKY     KKI'OliT. 

enue,  the  other  benefits  to  be  derived  from  their  construc- 
tion would  not  he  neglected.  Through  the  program  of 
reservoir  operation  devised  by  these  investigations,  the 
flood  control  values  could  be  secured  without  material 
interference  with  the  generation  of  power.  The  water 
from  the  tail-race  of  power  plants  would  be  ample  for  navi- 
gation, irrigation  and  salt  water  control  for  a  long  time. 
On  the  streams  on  which  placer  gravels  exist,  the  accumu- 
lation of  mining  debris  in  the  reservoirs,  in  being  slow 
and  not  affecting  the  power  drop  at  the  dam,  would  not 
materially  affect  the  power  output. 

At  the  end  of  the  period  of  operation  for  greatest  power 
revenue,  the  system  of  operating  the  reservoirs  would  be 
gradually  changed  to  that  producing  the  largest  flow  regu- 
lated for  irrigation  purposes.  This  change  in  the  method 
of  operation  would  about  double  the  summer  flow  yield  of 
the  reservoirs.  Power  could  still  be  generated,  but  being 
largely  seasonal  power,  could  only  be  marketed  in  part. 
Following  this  scheme,  the  summer  flow  in  the  Sacramento 
River  could  be  adequately  maintained  for  all  purposes  in 
the  face  of  increasing  diversions  for  the  next  half  century. 

The  realization  of  such  a  program  would  be  of  inesti- 
mable value  to  navigation,  salt  water  control,  mining, 
flood  control,  irrigation  and  farming  in  general.  It  would 
secure  for  the  present  day  the  great  advantages  of  a  sub- 
stantial summer  flow  in  the  Sacramento  River  for  naviga- 
tion, the  advantages  of  salt  water  control  in  the  delta 
region,  the  rejuvenation  of  hydraulic  placer  mining,  and 
a  substantial  reduction  in  the  flood  flows.  None  of  these 
could  be  obtained  in  nearly  such  full  measure  for  years 
to  come  except  through  a  coordinated  program  of  develop- 
ment. These  advantages  all  have  such  real  and  substantial 
value  that  earnest  consideration  should  be  given  to  the 
recommendations  contained  in  this  report. 

The  probable  costs  of  the  units  of  the  coordinated  plan, 
including  spillways,  gates,  sluices,  tunnels,  conduits  and 


WATER    RESOURCES   OP    CALIFORNIA.  .!;; 

power  plants  required  to  accomplish  the  results  described 
herein,  are: 

Height  Capacity 

Unit  Stream  da°m,  reservoir,  "2St 

feet  acre-feet 

Kennett    Reservoir— Upper  Sacramento   __  420 2,900,000 $S0,000,000 

OrovUIe    Reservoir— .Feather 300 345,000 35,000,000 

Narrows  Reservoir— Yuba    435 445,000 30,000,000 

Parker    Reservoir B<>ar 250 100,000 6,000,000 

Folsom  Reservoir American    190 307,000 11,000,000 

Fairview  Reservoir—  Trinity    .370 1,400,000 *46,000,000 

Total $208,000,000 

♦Includes  cost  of  completely  developing  the  power  drop  from  the  Fairview  reser- 
voir on  the  Trinity  River  to  the  Sacramento  River. 

The  plan  does  not  include  the  construction  of  canals  for 
distributing  the  water  developed  by  these  reservoirs, 
although  studies  have  been  made  of  alternate  layouts.  In 
general,  the  public  advantage  of  following  one  particular 
scheme  of  canal  construction  was  not  found  to  be  large. 
It  is  believed  that  this  part  of  the  program  can  be  most 
effectively  carried  out  by  local  effort  as  necessity  arises. 
Therefore,  the  plan  for  the  Sacramento  Valley  is  confined 
to  the  production  of  a  full  supply  of  water  in  the  stream 
channels  in  a  way  that  will  secure  the  maximum  public 
service  from  these  waters  at  the  least  expense. 


THE  SAN  JOAQUIN  VALLEY. 

The  San  Joaquin  Valley,  250  miles  long  and  40  miles 
wide,  comprises  the  largest  continuous  block  of  agricul- 
tural land  in  the  state.  On  the  vast  plains  of  the  valley 
floor  are  6,600,000  acres  of  land  having  gentle  slope  and 
flat  surface  conformation  favorable  for  agriculture.  The 
marginal  foothills  to  the  east  and  south  add  1,800,000  acres 
more,  making  a  total  of  8,400,000  acres  of  agricultural 
land  in  the  San  Joaquin  Valley,  one-third  of  all  the  agri- 
cultural lands  in  the  state. 

Favorable  conditions  for  growing  crops,  other  than 
scant  rainfall,  have  made  this  valley  a  pioneer  section  in 


.'J-!  SUMMARY    REPORT. 

irrigation.  One-half  of  the  lands  now  under  irrigation  in 
California  are  in  the  San  Joaquin  Valley.  Much  of  this 
land  has  an  imperfect  water  supply.  Some  receives  little 
or  no  water  in  dry  years,  other  areas  receive  only  a  partial 
supply,  and  over  half  of  the  projects  are  short  of  water 
during  the  late  summer  months.  Less  than  half  of  the 
area  under  irrigation  has  an  adequate  water  supply 
throughout  all  seasons.  Nevertheless,  this  development 
is  utilizing  all  the  low-water  flow  of  the  streams  in  the 
northern  half  of  the  valley  and  four-fifths  of  the  entire 
run-off  of  the  streams  in  the  southern  half. 

The  perfection  of  supplies  in  the  northern  half  of  the 
valley  concerns  principally  the  preparation  of  suitable 
economic  plans  for  constructing  storage  reservoirs  to  hold 
over  winter  and  spring  flood  waters  for  summer  use. 
This  has  already  been  done  or  is  now  in  progress  on  most 
of  the  projects  in  the  northern  half  of  the  valley.  In  the 
southern  half,  however,  the  perfection  of  present  inade- 
quate supplies  necessitates  the  importation  of  large 
amounts  of  new  water  that  presents  problems  insurmount- 
able to  local  effort.  Here  more  than  four-fifths  of  the 
mean  flow  of  the  streams  is  now  in  use  although  no  reser- 
voirs have  been  constructed.  The  irregular  diversions  from 
the  rivers  are  supplemented  by  pumping  from  under- 
ground sources  on  one-third  of  the  irrigated  lands  while 
on  another  third  the  entire  supply  is  derived  from  wells. 
Favored  with  large  areas  overlying  excellent  supplies  of 
underground  water,*  the  southern  San  Joaquin  Valley 
has  enjoyed  an  attractive  source  of  water  easy  for  indi- 
viduals to  develop.  So  encouraged,  extensive  communities 
dependent  upon  irrigated  agriculture  have  come  into 
being.  Their  wealth  is  reflected  in  their  assessed  valuation 
that  shows  a  greater  investment  in  rural  improvements 
than  any  other  section  of  the  state  excepting  properties 
adjacent  to  our  largest  cities. 

♦For  detailed  description  see  Bui.  No.  11  of  the  Division  of  Engineering  and  Irri- 
gation. "Ground  Waters  of  the  Southern  San  Joaquin  Valley." 


WATER   RESOURCES   OP    CALIFORNIA.  35 

Although  intensive  development  is  in  progress,  there  is 
still  much  good  land  in  these  communities  without  an  ade- 
quate water  supply.  Nevertheless,  so  extensive  is  the  use 
of  underground  water  that  the  water  plane  is  receding  in 
many  places.  Experience  is  demonstrating  that  these 
underground  supplies  are  not  sufficient  for  the  full  de- 
velopment of  the  overlying  lands  so  that  at  some  point  in 
the  progress  of  expansion,  the  draft  from  the  underground 
waters  must  exceed  their  average  supply.  There  are  now 
about  half  a  million  acres  in  the  southern  San  Joaquin 
Valley  supporting  prosperous  communities,  that  are  either 
overdrawing  their  underground  supplies  or  are  approach- 
ing this  condition.  These  areas  are  constantly  growing 
larger.  Their  available  surface  supplies  are  already  put 
to  full  use.  Therefore,  new  water  from  some  outside 
source  is  essential  for  continued  growth  and  prosperity. 
Without  it,  the  level  of  the  underground  waters  upon  which 
the  southern  half  of  the  valley  is  so  dependent,  must  per- 
manently recede  over  extending  areas  until  the  profit  in 
farming  is  entirely  consumed  in  pumping  the  irrigation 
supplies  to  the  ground  surface. 

The  complication  in  the  approach  to  exhaustion  of  the 
water  supply  in  the  southern  San  Joaquin  Valley  is  of 
state-wide  concern  for  there  is  no  simple  means  of  relief. 
There  is  no  way  to  stop  the  sinking  of  new  wells.  All  the 
overlying  lands  have  the  legal  right  to  pump  from  the 
underground  sources  if  they  choose.  The  construction  of 
storage  reservoirs  on  local  streams  would  help  temporarily 
but  little  new  water  would  be  created  thereby  because 
four-fifths  of  the  mean  flow  in  the  streams  is  already  in  use. 
The  principal  value  of  storage  reservoirs  would  be  in 
effecting  a  controlled  supply.  Unused  water  in  other  parts 
of  the  San  Joaquin  Valley  is  not  available  for  the  southern 
half,  because  there  are  areas  of  deficient  supply  close  at 
hand  to  the  few  regions  of  surplus.  The  valley  as  a  whole 
has  little  more  than  half  enough  water  for  its  future  needs. 
Therefore,  a  permanent  solution  to  the  water  problem  of 
the  southern  San  Joaquin  Valley  can  only  be  attained 


36  SUMMARY    REPORT. 

by  the  importation  of  a  large  supply  from  some  outside 
source. 

The  most  accessible  region  of  surplus  is  the  Sacramento 
and  upper  Trinity  drainage  basins.  Here  is  ample  water, 
taken  with  the  San  Joaquin  Valley  streams,  for  the  full 
development  of  both  valleys.  The  complication  and  large 
cost  of  transporting  the  surplus  waters  of  the  Sacramento 
several  hundred  miles  to  the  southern  San  Joaquin  Valley, 
requires  a  comprehensive  treatment  of  the  problem.  The 
coordinated  plan  proposes  to  correlate  the  conveyance  of 
a  new  supply  into  the  southern  San  Joaquin  Valley  with 
the  development  of  water  for  local  needs  throughout  the 
length  of  the  two  valleys.  In  this  way  the  new  supply  may 
be  obtained  with  full  protection  to  established  properties. 

Accordingly,  the  new  supply  for  the  San  Joaquin  Valley 
would  be  derived  from  the  water  used  to  maintain  naviga- 
tion in  the  channel  of  the  Sacramento  River.  After  serving 
its  useful  purpose  in  the  Sacramento  Valley,  this  water 
would  be  diverted  at  the  mouth  of  the  river  into  the  San 
Joaquin.  Passing  through  the  channels  of  the  island  region 
forming  the  delta  of  the  Sacramento  and  San  Joaquin 
Rivers,  it  would  be  boosted  up  the  main  channel  of  the 
San  Joaquin  by  a  series  of  pumping  plants,  each  one 
pumping  the  water  over  a  low  dam  to  the  higher  level  of 
the  pond  behind  it.  These  dams  would  be  collapsible  so 
that  they  would  not  obstruct  the  channel  during  the  flood 
season.  They  would  be  so  located  that,  if  desired,  locks 
could  be  constructed  along  side  them  that  would  make  the 
San  Joaquin  River  navigable  for  a  distance  of  160  miles 
from  its  mouth. 

This  series  of  dams  and  pumping  plants,  extending  the 
length  of  the  main  channel  on  the  valley  floor,  would  also 
constitute  a  means  of  conserving  the  scant  water  supply 
of  the  San  Joaquin  Valley.  Water  entering  any  section 
of  the  channel  would  be  caught  by  these  dams  and  redis- 
tributed throughout  its  length  by  the  pumping  plants. 
Thus  water,  entering  the  lower  reaches  of  the  channel  that 


WATER   RESOURCES    OF    CALIFORNIA.  37 

often  escapes  into  Suisun  Bay,  could  be  readily  utilized 
by  the  greater  area  upon  which  it  could  be  served. 

The  new  supply  of  water  obtained  through  the  oper- 
ation of  these  dams  and  pumping  plants  would  be  dis- 
tributed to  the  lower  lying  lands  in  the  San  Joaquin  Valley 
in  order  that  the  pumping  lift  may  be  a  minimum.  This 
would  release  San  Joaquin  water  now  used  on  these  lower 
lands,  at  high  elevations  for  diversion  by  gravity  to  the 
lands  in  the  southern  San  Joaquin  Valley  that  need  more 
water.  In  this  manner,  the  new  supply  could  be  obtained 
with  a  maximum  pumping  lift  of  160  feet.  The  exchange 
of  waters  would  save  340  feet  of  pumping  lift.  All  plans 
for  conducting  the  new  supply  directly  to  the  higher  lands 
that  need  water,  either  by  gravity  or  by  pumping,  were 
found  to  be  prohibitive  in  cost.  The  only  plan  of  prac- 
ticable proportions  includes  exchanges  of  water  and 
involves  properties  extending  the  entire  length  of  Sacra- 
mento and  San  Joaquin  Valle}7s.  The  exchange  of  water 
is  now  practiced  in  several  western  states. 

In  diverting  the  water  used  for  navigation  in  the 
Sacramento  River  to  the  San  Joaquin,  a  certain  portion 
would  escape  into  Suisun  Bay  unless  a  physical  barrier 
were  constructed  below  the  junction  of  the  two  rivers.  In- 
vestigations of  the  cost  of  such  a  barrier  have  been  com- 
pleted recently  in  cooperation  with  the  United  States 
Bureau  of  Reclamation.  These  reveal  that  the  probable 
cost  would  vary  from  $45,000,000  to  $90,000,000  according 
to  the  site  selected.  This  exceeds  considerably  the  cost  of 
developing  the  volume  of  water  that  would  escape  into  Sui- 
sun Bay  if  no  barrier  were  constructed.  At  some  future 
time  when  this  volume  of  escape  water  is  needed  for  irriga- 
tion in  the  San  Joaquin  Valley,  a  physical  barrier  could  be 
constructed  in  order  to  make  it  available.  In  the  mean- 
time, the  escape  of  this  water  into  Suisun  Bay  would  auto- 
matically dispel  the  menace  of  incursion  of  salt  water  into 
the  channels  of  the  delta  region.  The  volume  of  water  de- 
sirable for  navigation  in  the  Sacramento  River  is  ade- 


38  SUMMARY    REPORT. 

quate  for  both  salt  water  control  and  diversion  into  the 
San  Joaquin  Valley  for  a  long  time.  Thus,  the  coordi- 
nated plan  avoids  the  large  cost  of  a  barrier  for  many 
vears  to  come. 

< 

In  pumping  the  new  suj)ply  from  the  Sacramento  up 
the  grade  of  the  San  Joaquin  River,  it  will  be  necessary 
to  construct  levees  along  the  banks  of  the  river  for  a  dis- 
tance upstream  from  each  dam  in  order  to  confine  the 
water  to  the  stream  channel  at  its  increased  level.  The 
required  height  of  these  levees  would  grow  less  as  the  next 
upstream  dam  is  approached,  until  at  some  intermediate 
point,  the  ponded  stream  would  be  confined  within  the 
natural  banks  of  the  channel.  The  coordinated  plan  pro- 
poses to  incorporate  these  levees  in  a  general  plan  of  recla- 
mation for  the  overflow  lands  of  the  San  Joaquin  Valley. 

Unlike  the  Sacramento  Valley,  the  strip  of  overflow 
land  in  the  San  Joaquin  is  so  narrow  that  the  reser- 
vation of  a  channel  large  enough  to  pass  the  maximum 
flood,  leaves  an  insufficient  area  benefited  to  pay  for  the 
cost  of  the  levee  system.  Although  much  study  has  been 
placed  on  plans  for  reclaiming  these  overflow  lands,  an 
economic  plan  of  complete  reclamation  has  not  yet  been 
devised.  However,  opportunity  is  afforded  by  the  coor- 
dinated plan  to  improve  these  conditions  because  the 
required  width  of  flood  channels  could  be  reduced  if  the 
scheme  of  reservoir  operation  devised  by  these  investiga- 
tions, were  applied  to  the  reservoirs  on  the  tributaries  of 
the  San  Joaquin  that  are  either  already  constructed  or 
will  be  required  to  meet  the  demand  of  the  next  few  years 
for  irrigation  water.  These  will  have  sufficient  capacity 
to  reduce  flood  volumes  without  interference  with  con- 
servation, to  nearly  half  their  maximum  flow  except  for 
the  lower  one-third  of  the  main  river  channel.  On  this 
section  some  reduction  could  be  effected  but  not  as  much 
as  on  the  upper  two-thirds  of  the  channel. 

At  some  later  time,  a  greater  degree  of  flood  control  can 
be  effected  on  the  San  Joaquin  River  than  here  described. 


WATEH    RESOURCES   OF    CALIFORNIA.  39 

The  reservoirs  now  constructed  and  at  present  contem- 
plated on  its  tributaries  will  not  develop  the  entire  run-off 
of  these  streams.  Additional  storage  will  have  to  be  pro- 
vided at  some  future  time  for  conservation  purposes. 
By  including  this  additional  storage  in  the  flood  control 
system,  floods  may  be  reduced  to  smaller  volumes  than 
described  above.  This  additional  storage  is  part  of  the 
comprehensive  plan  for  the  ultimate  development  of  the 
San  Joaquin  Valley,  but  is  not  included  in  the  units  here 
suggested  because  it  will  be  some  time  before  it  is  needed 
for  conservation  purposes. 

Large  reservoir  units,  sufficient  in  size  to  make  the 
entire  run-off  of  the  streams  available  in  controlled  sup- 
plies, are  included  in  the  coordinated  plan  for  the  southern 
part  of  the  San  Joaquin  Valley.  Such  a  large  fraction  of 
the  entire  stream  flow  is  already  utilized  in  this  part  of 
the  valley,  that,  even  by  the  construction  of  these  large 
reservoirs,  the  new  supplies  made  available  would  be  suffi- 
cient to  serve  the  normal  growth  for  only  a  few  years. 
However,  they  could  temporarily  relieve  the  stress  caused 
by  the  overdraft  on  underground  waters  in  the  southern 
half  of  the  valley. 

The  construction  of  these  reservoirs  would  accomplish 
more  than  the  development  of  some  additional  water  and 
the  delivery  of  completely  controlled  supplies.  A  very  con- 
siderable amount  of  power  could  be  generated  as  well.  In 
order  to  generate  the  largest  amount  of  power  possible 
with  an  economic  installation,  the  coordinated  plan  pro- 
poses that  about  one-fifth  of  the  peak  irrigation  demand 
on  the  area  served  directly  from  the  reservoirs,  be  supplied 
by  pumping  from  the  underground  basins.  By  so  doing, 
the  draft  on  the  reservoirs  would  be  more  nearly  constant 
throughout  the  season  and  a  greater  output  of  salable 
power  could  be  generated.  Also,  by  pumping  still  greater 
volumes  of  water  from  the  underground  basins  during 
years  of  subnormal  run-off,  completely  regulated 
supplies  could  be  delivered  to  the  land  with  smaller  reser- 
voirs than  otherwise  would  be  needed.     The  coordinated 


40  SUMMARY    REPORT. 

plan  proposes  that  this  be  done  to  the  extent  that  the  total 
cost  of  completely  regulated  supplies  would  thereby  be 
reduced.  An  exceptional  opportunity  exists  for  an  eco- 
nomic arrangement  of  this  character,  for  one-half  of  the 
area  now  receiving  water  from  the  rivers  through  canals 
is  already  equipped  with  wells  and  pumping  plants. 

These  same  reservoirs  could  easily  be  used  for  con- 
trolling floods.  Their  capacity  would  be  sufficient,  if  oper- 
ated under  the  plan  herein  proposed,  to  reduce  floods  to 
one-half  their  maximum  flow  without  interference  with 
their  conservation  functions. 

Plans  for  constructing  storage  reservoirs  on  the  Upper 
San  Joaquin,  Kings  and  Kern  Rivers,  the  largest  streams 
of  the  southern  San  Joaquin  Valley,  are  now  being  per- 
fected by  water-storage  and  conservation  districts.  These 
are  organizations  of  the  many  corporate  units  that  now 
utilize  water  from  these  streams  or  desire  to  do  so.  The 
coordinated  plan  in  no  way  conflicts  with  the  plans 
of  these  districts.  It  is  distinguished  from  them  in 
providing  for  a  more  complete  development  than  the 
studies  of  the  districts  indicate  are  desirable  if  the  entire 
costs  are  assessed  against  the  lands  within  the  projects. 
The  coordinated  plan  sets  forth  greater  accomplishments 
for  public  consideration. 

A  series  of  trunk  canals  is  included  in  the  comprehen- 
sive plan  for  the  ultimate  development  of  the  San  Joaquin 
Valley.  These  canals  would  extend  southerly,  one  from 
each  main  tributary  of  the  San  Joaquin  River  and  one  also, 
from  the  American  River  in  the  Sacramento  Valley.  They 
would  divert  at  the  highest  practical  elevation  on  the  edge 
of  the  valley  floor  that  would  not  involve  expensive  foot- 
hill construction.  The  function  of  these  canals  would  be 
to  feed  the  water  from  each  tributary  into  systems  of  dis- 
tribution canals  at  the  highest  possible  elevation.  This 
would  take  water  now  used  in  one  system  and  deliver  it  to 
another  system  further  south  upon  receipt  of  an  equivalent 
amount  from  some  other  source.  No  exchange  of  owner- 
ship in  supplies  is  suggested.    Following  this  system,  the 


WATER   RESOURCES   OP    CALIFORNIA.  41 

entire  valley  floor  may  ultimately  be  brought  under  irri- 
gation with  the  maximum  economy  in  pumping  the  new 
supply  imported,  from  the  Sacramento  Valley.  Even  with 
this  economic  arrangement,  the  pumping  lift  on  much  of 
the  imported  water  that  ultimately  will  be  required  to  irri- 
gate the  entire  valley  floor,  will  be  large. 

Only  two  of  these  trunk  canals  will  be  needed  for  some 
time  to  come.  These  two  take  out  from  the  upper  San 
Joaquin  River  and  the  Kings  River,  respectively,  and 
are  necessary  to  convey  a  new  supply  into  the  area  of 
dropping  ground- water  plane  in  the  southern  San  Joaquin 
Valley.  They  are  part  of  the  first  construction  units  of 
the  coordinated  plan  for  importing  surplus  Sacramento 
River  water  into  the  San  Joaquin  Valley.  With  these  two 
canals  in  operation,  new  supplies  could  be  delivered  into 
the  heart  of  the  area  that  needs  them. 

The  probable  costs  of  the  reservoirs  of  the  coordinated 
plan  in  the  southern  San  Joaquin  Valley  that  will  yield, 
in  conjunction  with  the  ground- water  development  already 
existent,  completely  regulated  supplies  of  irrigation 
water,  control  floods  to  one-half  their  maximum  values, 
and  develop  incidental  hydro-electric  power  to  the  greatest 
economic  extent,  are : 

Unit  Stream 

Temperance  Flat  Reservoir_ Upper  San  Joaquin. 

Pine  Flat  Reservoir Kings  River 

Isabella   Reservoir Kern   River 

Bakersfield  Reservoir Kern   River 


leight 

of 
dam, 
feet 

Capacity 

of 
reservoir, 
acre-feet 

Total 
cost 

595 

1,100,000 

$51,000,000 

450 

1,400,000 

35,000,000 

250 
140 

1,100,000  1 
200,000  [ 

40,000.000 

Total    $126,000,000 

The  foregoing  estimates  include  the  cost  of  spillways, 
gates,  sluices,  tunnels,  conduits  and  power  plants  required 
for  conservation,  flood  control  and  power  development. 
On  the  Kern  River,  the  estimate  includes  conduits  and 
power  plants  to  develop  the  entire  power  drop  through  the 
Kern  Canyon  between  the  Isabella  Reservoir  and  the 
Bakersfield  Reservoir,  exclusive  of  the  capacity  of  the 
power  plants  now  operating  in  the  Kern  River  Canyon. 


42  SUMMARY    REPORT. 

The  probable  cost  of  the  first  units  of  the  coordinated 
plan  for  introducing  a  new  supply  from  the  Sacramento 
into  the  southern  San  Joaquin  Valley,  that  will  have  a 
capacity  of  three  thousand  second-feet,  the  equivalent  sup- 
ply for  450,000  acres  of  new  land,  is: 

Item  Cost 

Pams    and    pumping    plants    on    San    Joaquin    River    complete    with 

levees  along  river  banks $13,000,000 

Canals  extending  southerly  from  IViant  on  upper  San  Joaquin  River 

to  Kings  River  and  from  Kings  River  southerly  to  near  Earlimart       11,000,000 


Total    $24,000,000 

The  foregoing  estimate  does  not  include  the  cost  of  the 
salt-water  barrier  that  will  undoubtedly  be  ultimately 
required  nor  any  part  of  the  cost  of  the  coordinated  plan 
in  the  Sacramento  Valley  that  is  necessary  to  make  the 
surplus  water  of  the  Sacramento  drainage  basin  available 
for  diversion  into  the  San  Joaquin  Valley,  neither  does 
the  estimate  of  cost  of  the  dams  and  pumping  plants  on 
the  San  Joaquin  River  include  the  cost  of  locks  that  would 
be  necessary  at  each  dam  to  render  the  river  navigable. 

SOUTHERN  CALIFORNIA. 

California,  southerly  from  Tehachapi  Pass,  embraces 
twenty  per  cent  of  the  area  of  the  state  that  is  favorable 
for  human  habitation,  while  but  little  over  one  per  cent  of 
the  state's  waters,  exclusive  of  the  Colorado  River,  are 
tributary  thereto.  Although  possessing  a  disproportion- 
ately small  share  of  the  waters  originating  within  the 
state's  boundaries,  these  lands  have  experienced  a  rapidity 
of  settlement  and  improvement  that  has  amazed  the  entire 
world.  Already  one-fifth  of  the  area  possessing  a  water 
supply  on  the  Pacific  slope  lies  within  the  limits  of  incor- 
porated cities  and  towns  and  this  ratio  is  continuously 
growing  larger.  The  relinquishment  of  agricultural  land 
for  urban  use  does  not  reduce  the  total  water  consumption, 
as  cities  of  fairly  mature  growth  use  water  in  amounts 
about  equal  to  that  required  for  irrigating  the  same  area. 
The  demand  for  water,  therefore,  can  never  grow  less  in 


WATER   RESOURCES   OF    CALIFORNIA.  43 

southern  California,  but  larger  supplies  will  be  needed  for 
industries  and  manufactories  within  cities,  and  for  the 
extension  of  agriculture  to  the  limits  of  the  available  lands 
if  supplies  for  this  purpose  can  be  found. 

A  survey  of  the  available  waters,  both  surface  and  under- 
ground, shows  that  four-fifths  of  the  local  supplies  on  the 
Pacific  slope  of  southern  California,  excluding  Owens 
Valley,  are  now  in  use.  Utilizing  four-fifths  of  the  avail- 
able local  water,  less  than  half  of  the  favorable  area  is 
occupied  by  cities  or  towns  and  irrigated  lands.  In  order 
that  growth  and  expansion  may  continue  to  the  full  limit 
of  the  natural  resources  other  than  water,  the  Pacific  slope 
of  southern  California  will  require  three  times  the  volume 
of  water  that  can  be  obtained  from  nature's  allotment  to 
this  territory.  Unless  this  additional  water  can  be  secured, 
the  future  must  face  a  curtailed  growth  incommensurate 
with  the  opportunities  offered  by  the  other  natural  endow- 
ments of  this  remarkable  territory. 

The  development  and  use  of  the  local  supplies  is  attended 
not  only  by  the  usual  complexities  of  the  California  water 
law  but  also  by  the  problem  of  dropping  ground-water 
plane  similar  to  that  of  the  southern  San  Joaquin  Valley. 
The  problem  is  serious  because  three-fourths  of  the  local 
waters  now  in  use  are  taken  from  underground  sources. 
Observations  of  ground  water  levels  during  the  years  1922 
to  1925,  show  that  drops  have  generally  prevailed  and 
that,  in  three  seasons,  the  water  plane  has  receded  over 
large  areas  as  much  as  fifteen  to  fifty  feet.  Although  the 
greater  values  in  southern  California  permit  pumping 
from  greater  depths  than  in  the  San  Joaquin  Valley,  never- 
theless, the  inadequacy  of  the  underground  supplies  for 
the  support  of  the  full  development  of  the  overlying  lands, 
results  in  a  similar  necessity  for  imported  water.  Unless 
large  amounts  of  water  can  be  so  obtained,  the  southern 
communities  must  suffer  from  the  destructive  competition 
of  pumping  from  underground  sources  that  have  a  reced- 
ing water-plane.    Such  competition  will  burden  the  com- 


44  SUMMARY    REPORT. 

munities  with  prohibitive  pumping  costs  and  attendant 
loss  in  property  values,  and  in  the  end  reach  their  limit. 

The  threatened  exhaustion  of  local  waters  has  not 
occurred  only  through  the  foresight  of  Mr.  William  Mul- 
holland,  Chief  Engineer  of  the  Bureau  of  Water  Works 
and  Supply  of  the  City  of  Los  Angeles.  Because  of  the 
importation  of  water  from  Owens  Valley  for  the  City  of 
Los  Angeles,  there  are  still  some  local  waters  available  for 
the  expanding  uses  of  adjacent  territory.  Further  relief 
may  be  obtained  by  extending  the  Owens  Valley  project  to 
include  the  waters  of  Mono  Basin.  However,  a  complete 
development  of  the  surplus  or  unused  water  from  these 
sources  would  import  in  total  but  a  quarter  of  the  water 
that  will  ultimately  be  desired  for  the  Pacific  slope  of 
southern  California  in  addition  to  their  local  supplies. 
Nevertheless,  Owens  Valley  and  Mono  Basin  are  impor- 
tant sources  of  additional  water,  as  they  will  be  required 
ultimately  in  any  event  irrespective  of  the  acquirement 
of  other  supplies.  Studies  have  been  pursued  to  find 
sources  from  which  adequate  supplies  for  the  future  may 
be  secured.  These  investigations  show  that  sufficient  sur- 
plus water  exists  in  California,  only  in  the  north  Pacific 
Coast  region  six  hundred  miles  distant  and  separated  by 
mountain  barriers  that  could  be  pierced  only  at  costs 
beyond  our  present  conception  of  possibilities. 

In  the  absence  of  supplies  sufficient  for  all  future  pur- 
poses, attention  should  be  directed  toward  providing  for 
municipal  and  domestic  needs.  The  rapid  rate  at  which 
lands,  formerly  agricultural,  are  being  converted  into 
urban  and  suburban  properties  in  southern  California, 
makes  it  difficult  to  distinguish  between  irrigation  and 
potential  domestic  water.  In  fact,  it  appears  that  ulti- 
mately, practically  the  entire  use  of  water  on  the  Pacific 
slope  will  be  urban  or  suburban  in  character.  The  pleas- 
ing climate  of  this  section  is  attracting  residential  settle- 
ment from  all  the  states  of  the  Union  that  will  be  limited 
only  by  the  available  water  supply.  However,  distinguish- 
ing between  these  two  uses  for  the  next  third  of  a  century, 


WATER   RESOURCES   OP    CALIFORNIA.  45 

an  analysis  of  the  past  and  present  rate  of  increase  in  the 
demand  for  municipal  water  indicates  that  a  continuous 
supply  of  fifteen  hundred  second  feet  will  be  required  in 
addition  to  water  in  present  use,  to  serve  the  normal 
expansion  of  the    metropolitan  areas  of  this  region. 

It  is  generally  conceded  in  the  division  of  the  waters  of 
the  Colorado  River  that  fifteen  hundred  second  feet  should 
be  allotted  to  the  Pacific  Slope  of  southern  California  for 
municipal  purposes.  It  is  anticipated  that  this  will  be- 
come available  with  the  passage  of  the  Swing-Johnson  bill 
for  the  construction  of  the  Boulder  Canyon  dam  on  the 
Colorado  River,  now  pending  in  congress.  It  is  vitally 
important  to  the  entire  state,  not  only  that  this  water 
should  be  secured  for  the  cities  and  towns  of  the  Pacific 
slope  of  southern  California,  but  also  that  the  advantages 
that  will  accrue  from  the  construction  of  the  Boulder  Can- 
yon dam  in  the  control  of  floods  and  of  the  greater  summer 
flow,  should  be  obtained  for  the  California  lands  bordering 
on  the  lower  Colorado  River. 

The  construction  of  the  Boulder  Canyon  dam  is  one  of 
the  most  important  issues  before  the  public  at  this  time  for 
the  deficiency  in  the  natural  water  supply  of  southern  Cali- 
fornia and  the  control  of  floods  on  the  lower  Colorado 
River  is  a  matter  of  serious  concern.  Although  it  is  not 
apparent  from  what  source  the  required  large  volumes  of 
new  water  can  be  obtained  for  the  full  development  of  the 
Pacific  slope,  nevertheless,  present  attention  should  be 
directed  towards  securing  those  new  supplies  that  are 
available  on  the  Colorado  River  and  elsewhere  and  in  coor- 
dinating their  use  to  obtain  the  greatest  benefit  from  their 
limited  amounts.  In  this  effort,  these  investigations  have 
cooperated  to  the  fullest  extent  with  the  Bureau  of  Water 
Works  and  Supply  of  the  City  of  Los  Angeles  in  their 
projected  plans.  Data,  analyses,  and  plans  of  accom- 
plishment have  been  exchanged  with  this  office.  Separate 
and  independent  estimates  of  water  requirements,  of  water 
supplies  and  of  plans  of  development  have  been  made  and 
placed  at  its  disposal. 


4<i  SUMMARY    REPORT. 

In  the  study  of  local  supplies,  special  attention  has  been 
placed  upon  the  coordination  of  surface  storage  in  reser- 
voirs, the  control  of  floods,  and  the  replenishment  of  the 
underground  basins  from  which  such  a  large  part  of  local 
water  is  obtained.  The  Los  Angeles  County  Flood  Con- 
trol District  has  under  way  the  construction  of  a  series  of 
twelve  reservoirs  for  these  purposes  on  the  principal 
streams  in  Los  Angeles  County.  Such  reservoirs  will  be 
desirable  on  all  local  streams  in  southern  California  as 
growth  continues.  The  intensive  development  in  progress 
creates  a  particularly  large  flood  hazard  and  makes  the 
reservation  of  large  flood  channels  undesirable.  The 
reduction  of  flood  flows  by  reservoirs  is  therefore  very 
desirable. 

Unfortunately,  reservoirs  on  nearly  all  the  streams  are 
costly.  One  exception  is  at  the  Prado  site  near  the  entrance 
to  the  Santa  Ana  Canyon.  Here  large  capacity  can  be 
obtained  at  fair  costs.  A  reservoir  at  this  point  would 
control  the  floods  of  the  Santa  Ana  River  on  the  coastal 
plain  and  make  available  for  use  considerable  amounts  of 
flood  water  that  now  run  into  the  ocean.  A  plan  for  the 
complete  development  and  control  of  floods  on  the  Santa 
Ana  River  is  now  in  process  of  assembly  through  special 
investigations  being  carried  out  in  cooperation  with  San 
Bernardino,  Riverside  and  Orange  counties.  Reservoir 
sites  have  been  selected  on  all  the  tributaries  of  the  Santa 
Ana  River  at  locations  that  would  control  the  floods  as  they 
debouch  on  the  valley  floor.  These  sites  are  all  more  costly 
than  the  one  at  Prado;  however,  it  is  believed  that  their 
construction  will  become  desirable. 

The  coordinated  plan  proposes  that  reservoirs  be  con- 
structed on  all  the  principal  streams  and  that  they  be  oper- 
ated both  for  conservation  and  flood  control.  Although  the 
total  quantity  of  flood  water  reaching  the  ocean  is  rela- 
tively small,  still  it  can  be  most  effectively  conserved  by 
these  methods.  The  principal  storage  of  water  would  be 
in  the  large  natural  underground  basins  on  the  lower 
reaches  of  the  streams  where  these  are  available.    These 


WATER   RESOURCES   OP    CALIFORNIA.  47 

offer  a  splendid  opportunity  for  cheap  storage  in  many 
basins.  However,  some  surface  storage  is  necessary  even 
in  these  instances  in  order  to  equalize  the  stream  flow.  In 
the  natural  state,  flood  waters  rush  down  the  channels  in 
volumes  too  large  for  absorption  by  the  underground 
basins.  By  reducing  these  flows  through  reservoir  con- 
trol, practically  their  entire  volume  could  be  introduced 
into  the  underground  basins  through  absorption  by  the 
stream  channels  or  by  prepared  spreading  works. 

The  desirable  capacities  for  these  reservoirs  have  not 
been  finally  determined  at  the  time  of  writing  this  sum- 
mary report  so  that  their  cost  can  not  be  tabulated ;  how- 
ever, they  will  be  large.  The  coordinated  plan  will  secure 
the  greatest  results  from  their  use  in  the  same  manner  as 
proposed  in  the  coordinated  plan  for  the  Sacramento  and 
San  Joaquin  valleys.  By  the  application  of  the  principles 
developed  by  these  investigations  for  the  combined  use  of 
reservoirs  for  conservation  and  flood  control,  the  conserva- 
tion value  of  their  space  will  not  be  sacrificed  for  flood  con- 
trol. In  this  way  the  maximum  results  will  be  attained  at 
minimum  cost. 

It  is  believed  that  these  principles  of  reservoir  operation 
for  flood  control  can  also  be  applied  to  the  Boulder  Canyon 
reservoir  to  advantage.  Their  application  should  result 
in  a  more  effective  utilization  of  the  reservoir  capacity 
than  has  been  contemplated  because  they  secure  flood  con- 
trol without  the  sacrifice  of  any  reservoir  space.  These 
principles  will  be  fully  set  forth  in  an  appendix*  to  this 
report. 

•Bui.  No.  14,  "The  Control  of  Floods  by  Reservoirs." 


48  SUMMARY    REPORT. 


RECOMMENDATIONS. 


California,  endowed  by  nature  with  climate,  soils,  for- 
ests, minerals,  and  harbors  favorable  for  an  advanced 
civilization,  is  dependent,  nevertheless,  upon  the  artificial 
development  of  water-supplies  for  the  complete  fruition  of 
its  many  advantages.  At  this  time  in  the  progress  of 
expansion  when  all  the  easily  developed  supplies  are  now 
in  use,  it  is  of  the  greatest  importance  to  every  person  and 
to  every  industry  that  expects  to  partake  of  the  future 
prosperity  of  this  state,  to  have  assurance  that  progress 
shall  not  be  arrested  by  the  lack  of  adequate  water  supplies. 

The  creation  of  a  state  water  policy  that  will  insure  to 
present  and  future  generations  the  uncurtailed  develop- 
ment of  natural  resources  along  sound  and  economic  lines 
would  be  an  outstanding  achievement.  The  benefits  would 
be  far  reaching.  All  activities  are  vitally  concerned  in 
water.  Although  the  total  requirements  of  agriculture 
greatly  exceed  those  of  industry  and  commerce,  neverthe- 
less, industry  and  commerce  would  indirectly  reap  the 
greater  benefit.  They  will  endure  and  expand  most  suc- 
cessfully in  the  midst  of  thriving  agriculture.  Agricul- 
ture in  California  requires  large  quantities  of  water.  The 
total  supply  is  limited  and  unequally  distributed  over  the 
state. 

This  report  presents  an  engineering  plan  whereby, 
through  coordination  of  effort,  those  sections  deficient  in 
local  supply  may  enjoy  adequate  water  for  agricultural 
and  all  other  purposes.  The  new  supplies  for  the  deficient 
areas  would  be  taken  from  regions  of  surplus  after  pro- 
viding for  their  complete  development.  This  plan  is  pre- 
sented as  the  one  containing  the  fewest  difficulties  in  the 
attainment  of  the  desired  accomplishments.  While  only 
the  major  areas  were  considered  in  formulating  the  plan, 


WATER    RESOURCES   OP    CALIFORNIA.  4!) 

any  policy  that  may  result  should  extend  to  all  parts  of 
the  state  alike. 

So  extensive  is  the  area,  so  many  and  varied  are  the 
interests,  and  so  great  are  the  expenditures  involved  in 
this  plan  that  the  usual  method  of  procedure  is  imprac- 
ticable. The  economic,  financial,  legal  and  political  prob- 
lems relating  to  its  execution  are  so  complex  and  far 
reaching  that  they  should  be  the  subject  of  careful  delib- 
eration. The  broad  values  and  public  advantages  of  the 
plan  should  be  weighed  with  the  costs  and  difficulties. 
Methods  of  execution,  of  operation  and  of  financing  should 
be  considered  along  with  the  extent  to  which  costs  should 
be  distributed.  In  view  of  the  intricate  nature  of  these 
problems  and  their  momentous  bearing  upon  the  future 
of  California,  the  Division  and  its  advisors  earnestly  rec- 
ommend that  a  committee  representative  of  all  those  con- 
cerned in  the  development  of  the  water  resources  of  Cali- 
fornia, including  national  and  state  offices,  be  appointed 
solely  for  the  purpose  of  determining  first,  the  prac- 
ticability of  carrying  out  this  plan,  and  second,  if  found 
to  be  practicable,  to  recommend  a  method  of  procedure. 


52404      6-27      15M 


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PHYS  SCI  LIBRARY 


SEP  1  9  1996 

APR  1  3  2000 


JAN  1  9  2000 

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